HomeMy WebLinkAboutSS4 - Ending Sanitary Sewer OverflowsITEM 554
TO: Members of the Newport Beach City Council
FROM: Dave Kiff, Assistant City Manager
SUBJECT: How to NOT be #1: Ending Sanitary Sewer Overflows (SSOs) in
Newport Beach
RECOMMENDED Offer guidance to Staff regarding any issue conveyed in this Report.
ACTION:
BACKGROUND: In 2001, Newport Beach reached an unfortunate milestone when its beaches were
closed due to sanitary sewer overflows (SSO) 18 times. That number of closures
led Orange County, since it represents about a third of the county's 51 closures.
Importantly, only 4 of the 18 spills occurred within City sewer lines.
Our City's Wastewater Division (within the Utilities Department) — an award -
winning Division — actually does a great deal to protect our beaches from SSOs.
But we're not perfect and will continue to look for ways to improve.
All that said, as the Council reviews the attached information, we invite you to
offer your thoughts on the following issues:
• Are we spending the right amount of resources on Sewers (spill response,
line maintenance/ replacement, pump station upgrades, televising lines)?
• Should we be doing more with private property owners regarding privately
owned systems and privately owned laterals?
• How should the City address recent spills from faulty pump -a- heads?
• How should the City encourage better management of existing grease
control devices?
To assist in your discussions of these issues, we have proposed a task list at the
end of this Staff Report.
I -- HOW DOES OUR SEWER SYSTEM WORK?
A modern sewer system like ours typically consists of privately -owned lines from
homes and businesses that enter into a city-owned collection system (like ours) and
then into a regional collection and treatment system (like that owned by the Orange
County Sanitation District or "OCSD ").
There are four general classifications of sewer lines:
• Sewer laterals that go from a home or business to another line near the center of
the street (laterals are typically 4" in diameter to 6 ").
• Gravity mains that receive flow from the laterals (6" to 18 ");
• Force mains that take pressurized flow from a lift station up and over a hill (6" to
18 "); and
• Trunk lines that take flows from the force mains and gravity mains (24" to 48 ") to
the treatment facilities.
Most of the sewer laterals are owned by private individuals and businesses up to the
property line. Most main lines are owned by the City of Newport Beach. Most trunk
lines are owned by the Orange County Sanitation District (OCSD).
This diagram (from OCSD) is helpful:
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Regional
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Newport Beach has about 246 miles of sewer lines that it owns and maintains along
with 20 sewer pump stations.
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II— WHAT'S OUR SEWER BUDGET?
What We Collect. In FY 2001 -02, we will collect about $1,415,700 million in revenue
each year from our sewer customers via a sewer use fee. We also collect another
$1,467,000 from a sewer connection fee, interest, and for providing sewer services to
homeowners or businesses NOT served by our water system (and therefore not
billable under the sewer use fee). The typical residential of business customer pays
$0.25 per hundred cubic feet of water consumed (the sewer use fee) plus
$3.60 /month for the sewer connection. Most residences consume about 34 hcf /2
month period, which means they pay about 15.70/2 -month period for sewer
services. All together, we collect about $2,882,000 for sewers.
What We Spend. Our major sewer costs are routine maintenance activities (line
cleaning, line repair, pump station cleaning & repair) and the projects within our
Sewer Master Plan. We will spend about $3,131,932 for sewers in FY 2001 -02. A
wastewater reserve balance of $1,954,000 will remain at the end of the year.
Maintenance and Operations. This includes cleaning the City's lines, cleaning the
pump station wet wells, repairing minor line breaks, and more. We clean about 28
miles of lines either monthly or quarterly, because they either have grease problems,
excessive root intrusion, or are too gently sloped — the rest are cleaned annually.
Wastewater Vactor
We clean all 20 pump stations, plus the lines immediately adjacent to the pump
stations, quarterly (see Table 1). M &O (including salaries and related equipment)
accounts for about $1,600,000 of the Wastewater Division's $3,131,000 annual
expenditures (in FY 2001 -02).
Table I
Wastewater Maintenance Log
Cleaned on a monthly basis:
— High grease /root areas (In feet)
27,025
— Airport Area (in feet)
6,702
— Road Areas Requiring Tragic Control (in ft)
4,372
Total Mih's Cleaned on a Monthly Basis:
7.33
Cleaned on a quarterly basis
— Med high grease /mat areas (in feet) 19.753
— Pump Stations all 20
— Lines adjacent to Pump Stations (in feet) 12,249
Total MUM Cleaned on a Quarterly Basis: 26,13
Total Pump Stations Cleaned /Quarter: 20
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Capital Improvements. The 1996 Sewer Master Plan guides the City's capital
expenditures for Sewers. The City will spend about $1,520,000 to fund the 2001 -02
portion of the Plan. These expenditures will include (Table 2):
Table 2
Wastewater Capital Projects
Replacing Deteriorated Lines
$ 362,000
Breakers Drive Main Replacement
150,000
Pump Station Improvements (inc Buck Gully)
774,000
Lining & Adding Sewer Manholes (reduces infiltration)
57,000
Access Road to Back Bay Pump Station
21,000
Replacing laterals (where streets are resurfaced)
16,000
Televising Sewer Lines (1st of 4 years)
117,000
Removing Tree Roots from Mains
23,000
Total Wastewater CIP This Year:
$ 1,520,000
Pump Stations. Pump stations are particularly challenging spots to watch to avoid
SSOs. Stations involve electrical and mechanical equipment that can fail (gravity
rarely fails us). We try and remove pump stations where we can realign the pipes to
use gravity. We've gone from 24 stations in 1996 to 20 today. Of the 24 pump
stations identified in the 1996 Plan, 4 are gone and all but 9 will have been upgraded
to top standards after this fiscal year. Only one of the 9 (Diamond Avenue) require a
significant overhaul (proposed to be $1.08 million in 1996 dollars).
The spill warning system at all the upgraded stations is state -of -the -art, with multiple
communication methods (radio, phone, pager, direct line to computer system at
Utilities Yard) telling Utilities staff of any malfunction. Low -tech floats (like the ones
in a toilet's tank) also set off alarms.
Older Lines. Older sewer systems have a lines made with a variety of materials. We
no longer use many of these materials because they crack, collapse, and allow
groundwater to infiltrate the system. The types of pipes — along with the estimated
footage in Newport Beach (and an estimate of how much we've replaced since 1996) -
- are shown in Table 3.
Table 3
Older Wastewater Lines
Pipes in Need of Replacement (in ft) in 1996 Left (est)
Unlined Concrete (early- to mid- 1950s) 9,500 950
Welded Steel Pipe (installed early 1960s) 6,300 3,780
Total Footage Needing Replacement: 15,800 4,730
The most costly method of pipe replacement is to dig up streets, remove the older
pipe, and replace it with new pipe. Sometimes, if the older pipes are not overly
deteriorated, we can replace some pipes by "infilling" an older pipe with a new liner.
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Insituform is a company we use to do this process — it looks like the below and is
typically less expensive and Iess disruptive than laying new pipe.
Disibifornn Process final step)
A Good Role for Television. The 1996 Master Plan suggested that we embark upon a
four -year, $400,000+ program to televise (drop a camera into the line and look for
pipe cracks, root intrusion, and grease buildup) our sewer lines. Doing so will allow
us to further prioritize our line replacement program and will allow us to better
identify problem areas (near food preparation facilities or ficus groves) that may lead
to problems in the near future. FY 2001 -02 will be the first year of this 4 -year effort.
"Raver" Line Camera
Photo of Root - Clogged Line
III — WHAT CAUSES BEACH CLOSURES & SEWAGE SPILLS?
Beach closures are caused by sewage spills. State law (AB 411, Wayne, 1997) directs
local health officials to close receiving water beaches whenever they know or suspect
that a sewage spill has reached an area where people swim. For example, a spill in
Costa Mesa will likely cause health officials to close one of Newport's beaches if the
spill enters the Greenville /Banning Channel.
A — The Causes of Sewa eg So ills. According to County data, most SSOs in our area
(61 % in recent years) are caused by line blockages. Next highest on the list (causing
12% of the spills) are maintenance failures of plumbing associated with the 23 pump -
a -heads (also known as "pumpout stations ") in the Harbor. Ten of the 23 stations are
5
owned and operated by the City. The City's Harbor Resources Division inspects all
23 stations weekly. 2001 was a particularly bad year for pump -a- heads, in part
because we were paying more attention to inspecting the stations' plumbing.
Importantly, the County has convened a task force to look at improving the
plumbing code for pump -a -heads to stop plumbing leaks and failures. The task force
(under the direction of Tom Rossmiller of the Orange County Public Facilities and
Resources Department) will likely be done with its recommendations by May.
The primary causes of line blockages -- the #1 cause of SSOs — are grease and root
clogs. The combination of the two — a root - infested line with excessive grease — is a
formula for failure and for beach closure (see Attachment A).
B -- Solving the Pump -a -Head Problem. To reduce or eliminate beach closures due to
leaking plumbing at pump -a- heads, the City should:
1. Change out all of the remaining older style pumpouts to newer Sani - Sailors.
2. Re -plumb all pumpouts according to new standards developed by the County
Task Force.
3. Continue routine maintenance and inspection of facilities, with additional
signage with a hotline to report leakages or inoperable units.
There is little or no cost to the City in upgrading the pumpout stations and
improving the plumbing. The State Department of Boating and Waterways offers
grant funding for these purposes and the City has been successful in competing for
and receiving these grants in the past.
C -- Solving the Root Problem. Root problems are caused when lateral (private) or
connector (City- owned) lines deteriorate and /or crack at the seams and allow roots
to intrude in their search for water. The best ways to reduce spills due to root
blockages are to:
1. Encourage homeowners to regularly (2x /year) hire a plumber to clear private
laterals, especially where yards include Ficus and other shallow - rooted trees.
Plumbers must be careful not to push a root blockage forward into City sewer
lines, where the root nest could cause another, larger spill in City lines.
2. Avoid planting certain shallow - rooted trees, like Ficus.
3. Apply a root inhibitor /root foam on a routine basis.
4. Replace older laterals and mains with newer technology pipes, including PVC,
ABS, or liners like Insituform.
D — Solving the Grease Problem. Grease enters lines primarily through cooking
activities in homes, restaurants, and larger commercial kitchens. Restaurants
sometimes allege that homeowners cause as many grease problems as the few "bad
eggs" in the food preparation industry do. But a blockage in a restaurant's line is
usually greater in volume and, in many cases, closer to the Bay. The best ways to
reduce spills due to grease blockages are to:
1. Never dump liquid fats, oils, or grease into the sink drain
2. Scrape plates, pots, and pans clean before washing — deposit scrapings into the
trash.
3. Carefully brush food waste off of restaurant mats before cleaning the mats in
the sink (cleaning the mats outside causes the material to go into the Bay
directly) For larger commercial kitchens, install and maintain an adequately -
sized grease interceptor.
4. For smaller kitchens, drain fats, oils, and grease into a vat and have the vat
disposed of with the trash or by a service.
Newport Beach's Restaurants (+Grease Interceptors. After the Grand Jury report in
Summer 2001 on Grease Control, the City hired Jon Kinley of ECIS for a five -month
period to study and report back on the use of grease interceptors in Newport Beach's
305 food preparation facilities. Kinley did initial inspections of each restaurant (see
Attachment B) and has since visited those with interceptors once a month to inspect
the interceptors themselves and to speak with restaurant managers.
Of the 305 food preparation facilities, Kinley determined that about 123 are potential
sources of grease in the system:
• 124 have the right type and an adequately -sized interceptor (shown in green)
• 91 need interceptors but don't have one (shown in yellow)
• 32 have the wrong type or an inadequately sized interceptor (shown in blue)
• 58 do not need interceptors because of their menu (shown in pink)
As a reminder to the City Council, in 1997 your Council adopted Ordinance 97 -3
creating Chapter 14.30 of the Newport Beach Municipal Code (NBMC) relating to
Commercial Kitchen Grease Disposal. Chapter 14.30 does the following (among other
things):
• Prohibits the installation and /or use of food grinders in new establishments or
establishments undergoing remodeling;
• Requires all commercial kitchens and commercial kitchens to have a grease
control device as required by the Uniform Plumbing Code or "shall otherwise
comply with the provisions of this chapter."
• Requires all new commercial kitchens and commercial kitchens undergoing a
remodeling or change in operations to have a grease control device as required
by the Uniform Plumbing Code.
• Allows new or remodeled commercial kitchens to obtain a grease disposal
license in lieu of installing a grease disposal device if the Building Director finds
that there isn't enough space to install a device. These licenses cost $400.00 per
year and are issued annually - the license fee "shall be limited to the incremental
increase in the cost of preventative maintenance attributable to the licensee."
• Requires any commercial kitchen with a grease control device to "employ an
appropriate service or procedures" to clean the device. Cleaning must occur not
less than once every three months. Accumulated grease cannot be discharged
into the sewer system, storm drain, or "public way."
• Requires each kitchen with a device to keep maintenance records and to allow
City representatives access to the records by appointment.
• Authorizes the City to issue violations against commercial kitchen operators who
violate this Chapter - such violations can include fines based on infractions
($100, $200, or $500), misdemeanor fines (less than $1,000.00), jail time, civil
actions, or administrative citations (also $100, $200, or $500).
We collect $400.00 in licensing fees each year from one restaurant (Baja Sharkee's)
and have never issued a notice of violation associated with a commercial kitchen
operator's violation of Chapter 14.30.
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Are there Effective Alternatives to Grease Interceptors? Some argue that various enzyme
and biologic substances can either dissolve grease or impair its cohesion to sewer
lines. Others vocally believe that only an effectively maintained grease interceptor
works to keep grease out of lines. To study this issue, the OCSD, in combination
with the County of Orange and collection agencies like the City, have planned for a
series of pilot tests that examine various grease disposal products. This test is to
begin this summer.
What a Grease Interceptor Looks Like & How it Works
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IV -- STOPPING SEWAGE SPILLS FROM GETTING INTO THE BAY
We are quite aggressive in stopping sewage spills (that we discover early enough)
from getting into the Bay and Ocean. This is a 9 -1 -1 call for any resident and is
responded to as such by staff, including General Services, Utilities, and the Fire /Haz
Mat crews. Effective about nine months ago, Utilities has a flatbed truck -- loaded
with sandbags and plastic sheeting — ready to respond at all times. The first step is
to berm or place sheeting against the storm drain opening — stopping the flow and
vactoring up the waste come next.
Residents and business owners can help here too, by acting quickly if a spill occurs
on private or public property:
• Call 9-1-1 (or 644 -3717 during business hours) to get a City response team
activated.
• Immediately work to stop the spill using berms or sheeting.
• Curtail use of water to slow or stop the flow. Don't just wait for a plumber - your
risk of a fine (and the Bay's risk of pollution) increases with each gallon of
sewage that leaves your property.
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V — NEW REGULATIONS BY THE REGIONAL BOARD
The California Regional Water Quality Control Board, Santa Ana Region, has
proposed new Waste Discharge Requirements on public agencies like the City which
operate collection systems. These requirements include the development of a
Sanitary Sewer Master Plan (SSMP) — including detailed spill response activities and
system maintenance -- whose functions are summarized in Attachment C.
The City has been supportive of the Regional Board's efforts in this regard and does
not see the new regulations as directing anything significantly different from what
we do today. It's likely, however, that the SSMPs will involve major upgrades in
maintenance and response efforts by other agencies.
VI — GOING FORWARD — A TASK LIST
To allow some other city to replace us as having the highest number of beach
closures, we intend to follow the following list of tasks:
1 -- Adhere to the Sewer Master Plan.
2 — Better educate the public (via a Daily Pilot series, water billings) reminding
homeowners and business owners to:
• hire a plumber often to clean laterals and to maintain private systems to
control grease and to keep roots under control;
• If you see a spill or it's happening on your property, call 9 -1 -1 (or 644 -3717)
then immediately work to stop spills from getting into the Bay, Ocean,
and /or storm drain system.
3 -- Instead of mandatory interceptors for all restaurants, the City could start by
establishing Waste Discharge Permits (with a cost - recovery fee similar to the
Grease Control License) with all food service facilities that produce grease.
Such permits shall include:
• Agreements to follow appropriate BMPs
• Maximum grease intrusion levels
• Maintenance/ posting of appropriate educational material
• Maintenance log for laterals (at least quarterly)
• Maintenance of a log for any grease control device or vat
• Funding for a quarterly (then semi - annually) inspection for compliance
• Acknowledgement of City's ability to fine for non - compliance
Monitor the restaurants via the Waste Discharge Permits and monitor spill
reduction progress over the next 2 -3 years (including televising of lines). If we
can't cut grease and grease - related spills this way, consider mandatory
interceptors for all restaurants.
4 -- Participate in the pending Fats, Oils, and Grease (FOG) Study with OCSD, the
County, and other collection systems that examines alternatives to Grease
Interceptors.
5 — Renovate all older pumpout stations and install new plumbing according to the
Orange County Task Force's standards.
6 -- Prepare to comply with Regional Board's WDRs on Sanitary Sewers.
9
7 - Adopt a Standard Operating Procedure to always call the Orange County
Health Care Agency's Environmental Health Division when a spill starts so
they can respond if necessary to assess what action needs to be taken (not after
the clean -up is over).
ATTACHMENTS: Attachment A - Causes of Sewage Spills
Attachment B - Restaurant Listing
Attachment C - Regional Board's Proposed WDRs for Sewers
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17
Attachment IC
NIA –done rime,
Split EMacemen1 Actions – AVOlotn2 a Flne
– If apC ®used by severe nabrel ceditlons, ay must Mow rebvanl avkenc that the
conditions occurred and Mal Mere was no feasIbkl wey b avold the disciname (like bark-
NIA - -Gone now
NIA
up endpmen0.
caused by other Mdas, on must Mowihat Me Arentcubrothave
TIfspill
reasonably bean prevented, that"IdontlOetl Me cause, and Nat we tack all reasonable
NIA –done nmv
NIA
sips b avold II.
– Burden of Proof k on Me city.
NIA – done now
NIA
EHecllve Manaa0s mont. City Yhall properly Ned, menage, operals and maintain ... all I
Sae SSMP I
Sae SSMP
pads of Me sewage collodion system...-
Adequate Capacity. City Shall'pmale adequate rapidly b covey bad, flows and
Ses55MP
Sea SSMP
Peak Rowe, IrMUdbg Seat Sea ether erents, for all parts Of the system..'
All Feasible Slaps, City Mall take all -WSINO steps b stop, all ntiggam the trnpacl
See SSMP
Sea SSMP
0. saMbry saver oveMaws._'
Notification. City shall muffy Region d Board and a FICA ofany spill
NIA –done now
SO
Sewer System Ma rs all Plan diSMP). City and demlW an 55MP to campy will
See SSMP
See SSMP I
this atler all make It aVallabb to M. chic.
Prephat
What's in the SSMP?
Development Plan
by May 1, 2002
Organization Chief bently all reasonable partes in sewer System maintenance,
Iaduding Imes Wamhonyand Me Mainaammwnintion formpOrling SSOS larger
NIA –done now
50
Man 1,000 gallon..
tegM Authority. Legal euthoriry b:
(1) Control infilbatom Monaewage anted, Me sewer IlneaY.
(2) Asauos proper 11. cnaWCtion;
By January 1,
(3) Insure Posner boiling and inspection of lines;
200.
$
(4) -LuM cab and greases and other dells,TlM may cause blockages In Me sewage
cotiection system'; all
I
(5) Implement prohibitions .the national pre- treatment Program.
Final SSMP due
Measure. and AMlVHIec. The SSMP muaC May 1, 20W
(1)Adqulelymaln�nandopemte aIncluded Done now
a
E0
(2) Have an updated map Mowing all fadlilies
Done now
$0
(3) Protl&e Yppropell 55MP aatlVMSS,'
E
(e) Show routine pmventauw palnlen.nce
Cone now
EO
(5) Fully able. Me current capadty Of Mae Stem
(e) bedy and pdodtlzedafldeades, IndudM1, a rehabililetiun plan br the Income.
ES
(?) Preside regular and ireiMr,
Crnenow
$0
(8) ProVide Maquad replacement peal lnVentores
Donenov.
EO
(9) ESbblIM an - Implementation Man and schedule for a pulab education 0.1.0
Not dare nine
$$
pmgrem (as to the) ... proper dorpasal of Breass and fa s'
(10) common a plan in respond M pMam propetly, W.I. bprevent them "in anterl
Partially In place
$3
sloacc en lard;
(11) Develop a plan and schedule b:
(a)AnNyce anema.metlwds Of defines of grease and fats; and
planned! b2002-
E$
(b) Presents adquab dcline l depadty fa -I— and fats gerlerabd Munn Me sewer
03
sysmm moans area.'
Decide all Performance Standards. The SSMP at W WM:
Fbai . M07 e
May 1 1, 2007
(1) Stand ams to crew saxaraed pun, insMllatlons.
Donan.
EO
(2) Procedures for hepectlrg and testing new sdxas.
Done now
$0
– Monitoring, Measu ementArel Pmgmn Medi0rations. The SSMP must:
(1) Measure the egediVaress of Sea.sp¢d a Na SSMP.
$
'(2) Unfold program elements as needed.
$
(3) Keep the SSMP up"M and ready br audit at any time.
$
/W
(f) ensure Proper notlfication of affeckd parties. Done new
So
(2) Ensure Nat all ov Morvs are responded lo. Wne now
S0
(3) Ensure immedlate notification of the public and Malin agendhosW overflows d Dane n-
50
I'mgallonsormom.
(4) Ensure that staff Is indeed as to the Response Plan
Dona now
EO
(5) ProNda emergency response. Induding:
(a)Ul all reasonable steps to contain sewage; and
Done now
EO
(b) PmWde for aeatas where complete recovery Is rot Packable.
Grease and FN Control Program. the SSMP must Mduda a Grease and Fat Control
Pregrem to reduce Me amount disdtaripae into me sewage system. Me Plan mull
by May 1, M4
Include legal authority W podabil Geopefals and ID measures to am,enl SSOS caused
by It abould abo:
(1) ID secaens of Me system subject W grease bbckages ad previde nor a maintenance
pumatiy In Place
$
schedule her each sachan; and
(2) Wvabp and Implement ¢pone mnhol naaeead- W ab sourws of grease Ud in
NM done now
would¢
01
System Ecaluatlon and Capacity Insurence Plan. To assure capadty at peak flows,
by January 1, 2005
the SSMP must:
(A) Evaluals areas Will hydmuilc Wdendes
PaNaM M Place
$
(B)pdhrMcsgdbreroso MOeahydoi licdefldendes.
2
Padof SMP
i
. Plan
(C) Annually update i;_
S
Self- Audll. Coduct an audit of Me SSMP and Id compliance WM Me Onder.
WA
S
Communications. COmmunlcate},Aaty' edlh Interested Pardee on the
WA
5
impiementaaon and perfomwrce Of Me SSMP.
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